Balkinization  

Friday, July 11, 2008

The Privacy-Protective Components of the New FISA Law

Marty Lederman

Orin Kerr has a very good post up describing six ways in which the new electronic surveillance law includes privacy protections that were not in the 2007 Protect America Act (PAA). I haven't checked these closely against the 2007 law, but I have no reason to think Orin is not correct.

Three of those six improvements have been the subject of some attention already:

-- For the first time ever, surveillance of Americans abroad will require a court finding of probable cause to believe that the person is an agent of a foreign power.

-- There is to be more congressional oversight.

-- And, the new law requires the executive to adopt "minimization" procedures that comply with the traditional FISA minimization rules. This is certainly a good thing, although I've argued (see Question Three here) that those old minimization rules are somewhat obsolete, and almost certainly should be strengthened in light of the vast increase of "incidental" information about U.S. persons that the NSA will now inevitably obtain.

For some reason, however, the Democratic sponsors of the new law have not (to my knowledge) emphasized the other three improvements that Orin flags:

-- The law clarifies that "targeting" of foreign persons cannot be a pretext for obtaining information about U.S. persons. Section 702(b)(2) provides that the government "may not intentionally target a person reasonably believed to be located outside the United States if the purpose of such acquisition is to target a particular, known person reasonably believed to be in the United States." (Not clear to me how this prohibition will be enforced, however.)

-- The FISA court can only approve the NSA's surveillance plan if it finds that the plan is consistent with the Fourth Amendment. Section 702(i)(3)(A). That is to say, the FISA Court must do its own constitutional, as well as statutory, analysis -- although on a systematic, rather than a search-by-search, basis, which might prove very challenging.

-- Orin claims that the most important improvement is that it appears the FISA Court is suppose to conduct a de novo, rather than deferential, review of whether the NSA is complying with the statutory standards.

(Like Orin, I'd be grateful if folks with more expertise could confirm any or all of these changes.)

Orin therefore is quite right that the new law is a marked improvement over the temporary 2007 PAA. Accordingly, he wonders why the press is reporting this as a dramatic expansion of government power.

He actually identifies the correct answer to his own question: "[T]he press seems to be taking as the baseline the pre-Protect America Act state of the law."

That's right. And the law from 1978 to 2007 is the proper baseline for comparison -- not the PAA. The PAA was designed to last only six months for a reason: because Congress did not have an opportunity to consider the questions carefully, and gave away the store to the Administration on the condition that the interim law would be short-lived.

Thus, I disagree with Orin when he writes that "the most accurate way to frame looking at the new law is by reference to the Protect America Act negotiated just last year."

The proper frame of comparison is FISA circa 2006.

Orin says that's not fair, because everyone agreed that the pre-PAA FISA was out-of-date, and the new law fixes the gap in FISA that was uncontroversial.

That's true. Prior to 2007, FISA required a court order for interception of e-mails (not phone calls) from one foreign party to another foreign party if the interception occurred here in the U.S. And everyone agreed that such e-mail surveillance needed to be treated the same as foreign-to-foreign phone surveillance, which never required any such court order.

The new law does, indeed, close that gap.

But it does much, much more as well -- namely, it gets rid of the FISA requirement of a court order (and a finding that the target is an agent of a foreign power) for foreign-to-domestic phone calls and e-mails that are intercepted in the U.S. Therefore the new law -- like the PAA but unlike the 1978-2006 FISA -- will now permit the NSA to intercept a huge number of U.S. persons' international phone calls and e-mails.

Thus, as I've explained earlier, the new law is quite a dramatic change from the perspective of those of us who regularly make such international communications. It's certainly a good thing that it is not quite as intrusive as the six-month PAA was -- but it's much broader than the law that was in place for the previous three decades. Orin claims that "very few people actually care about these sorts of detailed surveillance rules." That may be true -- but I think it's because very few people realize how vulnerable to interception, retention and use their international communications now are.

One other quibble:

Orin writes that the telecom immunity is important to "a lot of people" because of its "tremendous symbolic importance," in the sense that "getting rid of the lawsuits symbolically lets the Administration 'get away with' the illegal monitoring."

Well, there's nothing "symbolic" about it. The immunity and, more importantly, Congress's failure to provide any mechanisma for government accountability, or even for disclosure of the Administration's wrongdoing, virtually ensures that the Bush Administration will "get away with" its illegal monitoring, in fact.

Thursday, July 10, 2008

Congressional Ratification of Presidential Wrongdoing: The Analogy to 1863

Marty Lederman

I want to pick up on one important aspect of Jack's excellent post about the new FISA amendments.

So far, most of the public attention has been on two features of the new law: the telecom immunity and the NSA's broad new electronic surveillance powers themselves. Critics such as Glenn Greenwald are understandably incredulous that a Democratic Congress would approve of these things where the President is a lame duck whose approval ratings are at record lows, and where that same Congress has (arguably) regretted its recent past capitulations on national security matters, such as the Military Commissions Act and the Iraq War authorization.

As I've written in several posts here, I share the concerns about the broad new authorities Congress is giving the NSA. But I understand the case on behalf of the new authorization, and, like Senator Obama, my principal regret in this respect is that the new law does not provide sufficient protections of U.S. persons -- in particular, that it does nothing to beef up the required "minimization" procedures to limit the government's use of the vast reservoir of U.S. persons' international communications to which it will now have access.

I don't think any good case has been made for telecom immunity; but Congress's decision on that score is not surprising, either -- it can be explained in large part by campaign contributions. Moreover, the immunity wouldn't be such a big deal if there were some means of accountability for the government officials who asked the telecoms to violate FISA.

Which brings me to the part of Jack's post that I'd like to focus on, the aspect of the legislation that most concerns me: Has Congress now ratified the President's past wrongdoing? Jack writes:
[T]he fact that Congress is now giving the President the authority to do much of what he was probably doing (illegally) before suggests that Bush's illegal program has to a large degree been ratified by Congress. If you want a historical example, although not a perfect one, it is Lincoln's decision to (illegally) suspend habeas corpus, which was later followed by Congress's ratification of Lincoln's suspension. . . . If this is not a ratification in form, it is surely one in substance.
My take is slightly different:The fact that Congress has now authorized the NSA, going forward, to do much of what the Agency did from 2001 to 2007, does not itself mean that the legislature has ratified the past illegal conduct. It might only mean that the legislature agrees with President Bush that such surveillance is a worthwhile thing, and that FISA should be amended accordingly -- perhaps even that FISA should have been so amended in 2001.

But it surely does not follow that Congress has thereby ratified the Administration's past wrongdoing: That the law should be amended to make something legal ordinarily does not suggest that it was ok to do that same thing -- in secret -- for six years while it was unlawful.

The most regrettable part of the legislation, then -- what might truly be deemed a ratification of the past wrongdoing -- is not that Congress has given the NSA new authorities, but that it did not insist upon some sort of accountability for -- or even transparency of! -- the previous gross misconduct, in exchange for giving the President almost everything he was seeking prospectively.

Jack makes reference to Congress's 1863 "ratification" of Lincoln's suspension of habeas corpus in 1861. The analogy is partially apt for the reason I just discussed -- not because Congress itself suspended habeas prospectively, but because the Civil War Congress did little, if anything, to penalize Lincoln for his unlawful unilateral suspension of the writ -- other than to complain loudly.

But for several reasons, Congress's "ratification" of past wrongdoing today is much more troubling than the legislative "ratification" of Lincoln in 1863.

Most obviously, Lincoln's party controlled the Congress -- indeed, most of the opposition, not to mention those who would principally be affected by the suspension, were AWOL. Lincoln's approval rating wasn't in the low 20's, and he wasn't a lame duck. And Congress largely approved of the way he was handling the war (the principal criticism coming from Radical Republicans who thought Lincoln was not sufficiently aggressive). Thus, it's not at all surprising that Congress did not do much to penalize Lincoln for having usurped a power that belonged to the legislature.

For another thing, when Congress finally got around to suspending habeas, it did not give Lincoln quite everything he wanted -- it limited his suspension power in important respects: This was the actual, largely ignored holding of the Milligan case, which David Barron and I describe at pages 1004-1008 here.

But the biggest distinction between 1863 and 2008 was in the nature of Lincoln's wrongdoing and posture toward Congress, as compared with President Bush's.

Lincoln publicly suspended habeas; he didn't do it secretly.

Lincoln's legal claim, while certainly audacious, was not that he had the constitutional authority to disregard congressional statutes, but instead simply that Article I empowered both the President and Congress to suspend the writ.

Perhaps most importantly, even though Lincoln was asserting a concurrent constitutional power, contrary to the views of most legislators that the power belonged to Congress alone, Lincoln justified his assertion of that power on the ground that Congress was not available to exercise it. (Congress was in recess from the attack on Fort Sumter until July 4, 1861.) And once Congress had returned, Lincoln conceded that the legislature was supreme, and that he would abide by their judgments. As David Barron and I have written:
In his July 4 message to Congress, Lincoln defended his action in
“suspending” the writ with his famous remark suggesting that a President might choose to violate a single law lest “all the laws but one . . . go unexecuted.” But in making this statement, the President was not asserting a general constitutional power as Commander in Chief to pick and choose among statutory mandates regulating the conduct of war. He was instead remarking on the President’s responsibility to take action on an emergency basis when doing so is necessary to preserve the nation. Even here, Lincoln was careful to insist that Congress retained ultimate control, and he readily conceded that his bold initiatives, including those regarding the suspension of habeas, were subject to statutory qualification or override: “Whether there shall be any legislation upon the subject, and, if any, what, is submitted entirely to the better judgment of Congress.” In other words, Lincoln was arguing that so long as a power resided in the Congress, and the Congress was unable to act because it was not in session at a moment of emergency or crisis, the President could, in effect, act so as to preserve the nation. Although such initial executive action would clearly shift the burden of inertia sharply in the Executive’s favor, Lincoln did not challenge Congress’s authority to countermand the President’s emergency actions.
That is a far cry from President Bush's secret disobedience of a federal law for six years, on a theory that the Commander in Chief can disregard statutes that restrict his conduct of war. The biggest problem with today's FISA law, then, is what Congress has not done: It has done nothing even to bring to light the details of the President's wrongdoing -- not even released the OLC memos on which the program was based -- let alone anything to promote public accountability for such past wrongdoing. If the President and his defenders crow that this is a ratification of that past gross misconduct, I can't say I'd blame them.

Al Qaeda on the Speed-Dial

Marty Lederman

"There is nothing to fear in the [new FISA] bill," says lead sponsor Senator Kit Bond, "unless you have Al Qaeda on your speed dial."

Glenn Greenwald catches an eerie historical "coincidence": Back in the late 1960's Congress similarly enacted a bill that gave the President virtually unfettered discretion to engage in electronic surveillance for national security purposes. Responding to anxieties about possible abuses of this authority, Attorney General John Mitchell assured Americans that "Any citizen of this United States who is not involved in some illegal activity has nothing to fear." Of course, that promise was empty, and the ensuing gross abuses are what prompted Congress to enact FISA nine years later, thereby providing some judicial oversight to prevent such intrusions on the privacy of U.S. persons.

I'd like to focus, however, on a much more fundamental problem with Senator Bond's statement: It's simply not true, even if the government does not abuse the new statutory authorities.

The new statute permits the NSA to intercept phone calls and e-mails between the U.S. and a foreign location, without making any showing to a court and without judicial oversight, whether or not the communication has anything to do with al Qaeda -- indeed, even if there is no evidence that the communication has anything to do with terrorism, or any threat to national security.

As I've previously explained, the NSA's objective here is not simply to surveil foreigners who it already suspects as being part of al Qaeda -- it can easily obtain a FISA order as to those folks. Nor is the purpose of the new law to allow warrantless surveillance of international-to-international calls -- that's already legal, too. As is the warrantless overseas interception of calls between foreigners and U.S. persons.

What the agency is seeking, instead, is to be able to intercept foreign communications (i) coming across domestic wires where (ii) NSA does not have probable cause to believe that any of the parties is a terrorist or agent of a foreign power; and (iii) there is a chance that some of the intercepted communications will be with persons in the U.S.

The new law allows the NSA to do this, by permitting what David Kris has called a form of "vacuum-cleaner" surveillance that (in the words of the new law) "target[s] . . . persons reasonably believed to be located outside the United States to acquire foreign intelligence information."

Under this new standard, there's no need that the surveillance have any connection to al Qaeda, or terrorism, or even to national security. The only substantial requirements are that someone overseas be a "target" and that one "significant purpose" of the surveillance be to acquire "foreign intelligence information" -- which is very broadly defined to include most anything that occurs overseas and in which the federal government might have an interest (including information necessary to protect against the full range of foreign threats to national security, and information with respect to a foreign power that is necessary to the national defense or foreign affairs).

In the course of this vast interception of foreign-to-domestic communications, the NSA will inevitably obtain extensive information about U.S. persons having no connection whatsoever to al Qaeda or terrorism. The bill does require a modest type of "minimization" procedures designed to "minimize the acquisition and retention, and prohibit the dissemination, of nonpublicly available information concerning unconsenting United States persons." Which sounds reassuring. However, such minimization would be required only "consistent with the need of the United States to obtain, produce, and disseminate foreign intelligence information." (And recall how broadly "foreign intelligence information" is defined.) Moreover, even where the information is not foreign intelligence information, the law permits "the retention and dissemination of information that is evidence of a crime which has been, is being, or is about to be committed and that is to be retained or disseminated for law enforcement purposes."

That is to say, even if you were not the original target of the surveillance, the government can make use of and disseminate information about you if your international phone calls or e-mails reveal evidence of any crime. And, of course, if those same communications provide evidence that you are an agent of a foreign power, that evidence can then be used to obtain an order for surveillance of your own phone and/or computer more broadly, under FISA itself.

Accordingly, Kit Bond's statement should be revised to read:

"There is nothing to fear in the new FISA bill unless you make international phone calls or e-mails that arguably implicate the federal government's national security, foreign affairs or law enforcement interests."

The New FISA Law and the Construction of the National Surveillance State

JB

We have been covering the features of the new FISA act (here, here, here, and here), and I won't repeat that analysis here. I continue to think that the new procedures in Title I are far more worrisome than Title II, the immunity for telecom companies. But in this post I want to say a few words about the larger meaning of what has happened.

First, its worth watching to see if President Bush issues a signing statement to the legislation that reserves the right to disregard any provisions requiring accountability and reporting to Congress and the courts. He has done so before with other legislation, for example, regarding national security letters. If President Bush does issue such a signing statement, even after having repeatedly pressed for this bill, Democrats will look particularly foolish; for it is these provisions (and the FISA exclusivity provision) they have pointed to as the major reason why it is acceptable to vote for the bill. Of course, Bush will only be in office for about 200 more days, so he will have comparatively few opportunities to act on his threat to disregard the accountability and reporting provisions. Thus the real issue is whether the next Administration will continue to hold the same views as Bush/Cheney/Addington on the President's Article II powers to disregard legislation. If the next Administration does hold such views, even the FISA exclusivity provision won't mean much, because the next President will simply disregard it, much as Bush disregarded FISA's already existing exclusivity provision.

Second, the passage of this bill looks very much like a repeat of 2002, when the Democrats, eager not to be cast as weak on national security, caved on supporting an authorization for the war in Iraq, or 2006, when they caved on the Military Commissions Act. You might think that they had learned their lessons by now. When you give George Bush what he wants, people don't think you are strong on national security. They think you are weak because you are a pushover. If you can't stand up to a lame duck President with 30 percent approval ratings, who are you ever going to stand up to?

I note that one of the great architects of the give-Bush-whatever-he-wants-so-he-won't-call-us-weak strategy in 2002 was Tom Daschle, then the Democrats' leader in the Senate. As you may recall, Daschle's wisdom was rewarded by the loss of is own own Senate seat. These days, he is one of Barack Obama's closest advisors. Perhaps it is only a coincidence that Obama has taken the positions he has taken. Indeed, as the presumptive head of his party Obama effectively signaled by his support that the Democrats should not try to block this bill.

Third, you may still be wondering how George Bush triumphed, given that he has almost no credibility or clout remaining. My answer to this question is that quite apart from the natural cowardice of substantial segments of the Democratic party in the House and Senate, there is a far larger development going on. Let me say a few words about what that is.

Sandy Levinson and I have noted previously that we are in the midst of the creation of a National Surveillance State, which is the logical successor to the National Security State. And we have noted that, like the National Security State before it, the construction of this new form of governance will be a joint effort by the two major parties. It so happens that in 1947, when the National Security Act was passed, the Democrats controlled the Presidency while the Republicans controlled Congress. In this case it is the reverse. But the larger point is that both major political parties are committed to the build up of surveillance programs and technologies for purposes of security and the delivery of government services. We are going to get some form of National Surveillance State. The only question is what kind of state we will get. As of right now, it looks like we will get one that is far less protective of civil liberties than we could have gotten. Some of the new features of the surveillance bill have sunset provisions, and others may be altered through amendment if and when the Democrats take the White House. Still the fact that Barack Obama ended up supporting this bill is not particularly good news.

Indeed, the fact that Congress is now giving the President the authority to do much of what he was probably doing (illegally) before suggests that Bush's illegal program has to a large degree been ratified by Congress. If you want a historical example, although not a perfect one, it is Lincoln's decision to (illegally) suspend habeas corpus, which was later followed by Congress's ratification of Lincoln's suspension. It is true as a formal matter that Congress has not officially approved of what Bush has done, and it has granted immunity only to the telecom companies, and not to those Administration officials who, in effect, conspired to violate FISA. But at this point I am doubtful that the next Administration will try to prosecute former officials for violating FISA, especially now that Congress has effectively blessed the formerly illegal programs. If this is not a ratification in form, it is surely one in substance.

The lesson is that there are at least two different ways for the executive to increase his power. One is when the President seizes power through unilateral action. The second is when Congress gives it to him. In 2001 Bush chose the first path. In 2008 Congress (controlled by the other party no less!) is offering the second path. In both cases, the executive becomes more powerful. To be sure, the new bill does impose new reporting and accountability requirements. But, as noted before, let's see if the current Administration-- and the next one-- tries to wriggle out of them. The larger point is that two parties are not in fact dividing over the issue of Executive power. Both parties seem to like more and more executive power just fine. They just have adopted different ways of achieving it. One can expect far more Congressional cooperation if a Democratic Congress is teamed with a Democratic President. The effective result may not be less Presidential power to run the National Surveillance State. It may be in fact be more.

I repeat. If you are worried about the future of civil liberties in the emerging National Surveillance State, you should not try to console yourself with the fact that the next President will be a Democrat and not George W. Bush. It's worth remembering that the last Democratic President we had, Bill Clinton, was not a great supporter of civil liberties. (I was therefore amused to see that his wife, Hillary Clinton decided at the last minute to vote against the bill. Good for her, but I have difficulty believing that the choice was a purely principled one). The mere fact that the next President will be a Democrat-- even a liberal Democrat-- is no guarantee that he will work hard to protect civil liberties in the emerging National Surveillance State. It is not enough to say that Obama has taught constitutional law before he became a United States Senator; so did Bill Clinton before he ran for governor of Arkansas.

Democrats (and Republicans) who care about civil liberties should put as much pressure as they can on the next President-- especially if he is a liberal Democrat-- to make sure that he truly respects civil liberties, and that he builds adequate protections into the emerging National Surveillance State. Making a campaign commitment to amend the worst features of the new surveillance bill in the next Administration would be a good start.

Wednesday, July 09, 2008

Recapturing the Flag

Sandy Levinson

Common Cause in sponsoring a national petition drive under the name "Recapture the Flag." The aim is to encourage citizens to

demand a President and Congress that believe in the Constitution, the rule of law and justice for all! . . . . We've asked every congressional and presidential candidate to make five simple promises:

• End torture, respect human rights and restore America’s reputation in the world.

• Respect the rule of law and fiercely challenge anyone who seeks to undermine the Constitution and the Bill of Rights.

• Root out corruption, special interest abuses and partisan prejudice in the administration of justice.

• Hold to account – without exception – anyone who breaks the law or violates the public trust.

• Protect personal freedom by rejecting warrantless spying and other affronts to individual liberty.


These seem like fine aims, and it is no doubt churlish to offer any criticism at all. But regular readers will not be surprised to learn that I'm not entirely happy with the promise to "fiercely challenge anyone who seeks to undermine the Constitution." I am ever more convinced, to paraphrase Philip Larkin's well-known poem about "mum and dad," that the Framers "fuck[ed us] up . . . . They may not [have meant] to, but they [did]." And the most important way we are fucked up is the mindless reverence for the Constitution instantiated in the Common Cause ad. One should obviously fight the undermining of those parts of the Constitution that deserve our devotion, but it would be bracing if the folks at Common Cause recognize that the Constitution itself contributes to the fact "that today our democracy is indeed in distress" by our inability, for example, to get rid of a dangerously deluded President (who will, of course, have all of the legal powers of the presidency at his disposal until January 20, 2009, whatever the verdict of the American people in November 2008).


None of you need reply with encomia to our Constitution. We've been through that exchange enough times. This is simply one last venting before I leave from Australia tomorrow morning and thus absent myself from the blogosphere for at least three weeks.

Tuesday, July 08, 2008

Heller and The Constitutional Right of Self-Defense

JB

In conversation Sandy Levinson has impressed on me several curious features of the Second Amendment right of self-defense recently recognized in District of Columbia v. Heller. The more I think about this new right the Court has recognized, the more curious it becomes.

Invoking Blackstone, Justice Scalia reads the Second Amendment to protect the common law right of self-preservation and self-defense, but what precisely is involved in this right? Does it protect only the right to keep firearms in the home for self defense, or does it also include the right to keep them on one’s person outside the home, for example, when one travels in dangerous neighborhoods? If it permits keeping firearms outside the home, why not concealed as well, as long as this would make self-defense more effective? (In Heller itself, however, Scalia noted that courts have sometimes upheld concealed weapons bans despite state constitutional guarantees of the right to bear arms. Moreover, Scalia noted, the right traditionally did not extend to felons. But surely felons have a right of self-defense like everyone else.)

Does the right of self-defense secure a right to use weapons other than firearms for self-defense in the home? After all, isn't the point of the right of self-defense to defend oneself, and if other instrumentalities are equally useful for that purpose, why should their possession and use not be equally protected?

Consider, for example, laws banning the possession of switchblades. Can these laws constitutionally be applied to possession of switchblades in the home? And if switchblades are protected in the home, why are they not protected outside the home as well? Is mace constitutionally protected under the constitutional right of self defense? Are stun guns? (The issue is not, as Paul Robinson suggested in the New York Times a week ago, whether guns should not be protected because there are less dangerous methods of defending one's self in the home. Rather, the question is whether equally or less dangerous methods of self-defense should also be constitutionally protected under Heller.)

By now you get the basic idea: The right nominally protected in Heller is the right to use guns in self-defense in the home. What is not clear is how important the terms "guns" and "home" are to the this right.

If the right of self-defense is just the right to use guns (or some limited subset of weaponry) in self defense, it is not, strictly speaking a right of self-defense at all. And it is not the common law right that Scalia celebrates in his majority opinion. Rather it is a subset of that common law right. Not only does the right not extend to self-defense through the use of "dangerous" weapons, but it also does not extend to self-defense using weapons less dangerous than ordinary handguns and shotguns because these weapons do not fall into the category of "arms" under the meaning of the Second Amendment. (In the past one might have tried to connect that category to weapons useful for militia service, but the militia of old no longer exist today, and so instead Scalia is thrown back on the idea of arms in common use. Yet switchblades, one might think. are also in common use.)

Similarly, if the right of self-defense is the right to defend one's self in the home, it is not the common law right of self-defense, which extends outside the home.

Indeed, things would get quite complicated if we took seriously the suggestion that the common law right of self defense has been constitutionalized. Presumably this would mean that states now must, as a constitutional matter, have a doctrine of self-defense in their criminal and tort laws. Do doctrines of self-defense have to be the same for all jurisdictions, or at least satisfy some constitutional minima? (For example, in some jurisdictions, one does not need to flee one's dwelling place to avoid confrontation if there is an intruder, but may use deadly force instead, while in others one may not automatically use deadly force if deadly force is not threatened. Does this change after Heller? Do all jurisdictions have to have the same standards of mens rea for using deadly force in self-defense?)

And if there really is a constitutional right of self-defense, should it be limited only to situations where a person is directly attacked by another, or should it extend to other situations where a person's life is endangered and they need to act to prevent death or serious bodily injury? For example, would the constitutional right of self-defense extend to the use of drugs and surgeries that patients reasonably believe are necessary for their survival? See Eugene Volokh, Medical Self-defense, Prohibited Experimental Therapies, and Payment for Organs, 120 Harv. L. Rev. 1813 (2007)(discussing possible rights of self-defense under the Due Process Clause); Abigail Alliance for Better Access to Developmental Drugs v. von Eschenbach, 495 F.3d 695 (D.C. Cir. 2007) (en banc), cert. denied, 128 S. Ct. 1069 (2008)(holding that terminally ill patients have no fundamental right under the Due Process Clause to obtain potentially live-saving medications still undergoing testing required by the Food and Drug Administration). Does Heller put the result in Abigail Alliance into doubt? What are the plaintiffs doing in Abigail Alliance but trying to stave off death?

Finally would the constitutional guarantee of self-defense protect the right of women to have abortions to save their lives? In Roe v. Wade, the Court held that even in the third trimester women had the right to abort a fetus if their life was at stake. Does Scalia's opinion in Heller state a principle that could now be used to buttress this aspect of Roe v. Wade? That would be the greatest irony of all.

In fact, I don't believe that courts will read Heller in the ways I have suggested in these hypotheticals. But that is not because these hypotheticals don't follow logically from the idea of self-defense. Rather, it is because I don't think the right recognized in Heller is really about protecting a right of self-defense. Behind all the talk about self-defense lies a larger and more powerful set of cultural concerns. Heller is about the right of people to own guns, and to use guns. That is the cultural meaning of Heller, and it is the right that social movements for gun rights have been particularly concerned to protect.

Monday, July 07, 2008

Popular Monitoring of Popular Elections

Heather K. Gerken

Archon Fung, one of the most interesting thinkers at Harvard's Kennedy School, has just come up with an intriguing idea for monitoring elections: a teched-up, wiki-based system for reporting problems on election day. It's modeled on the award-winning British site, fixmystreet.com, where people report maintenance problems (graffiti, potholes, broken street lights), locating the problem on a map and often attaching photographs to the entry. The site is interactive; it reports when a problem has been fixed and maps where current problems are so that you can figure out how things are working in your neighborhood. As you'll see from his introductory site, Fung envisions a much bigger version of this idea -- a national "weather map of election conditions" that would show you where the biggest problems are occurring based on real-time entries by trained election monitors and everyday citizens. You could then drill down into the map, figuring out exactly where problems were occurring in your state, city . . . even your polling place. The visuals would look something like this map of gas prices.

What makes Fung's idea promising is that it’s a "here to there" solution. It doesn't directly change how our elections are run. But it helps create an environment in which change is possible. As I explain in my forthcoming book, The Democracy Index: Getting from Here to There in Election Reform, the reason that it's hard to get election reform passed is that election problems are largely invisible to the average voter. Discarded ballots, long lines, machine breakdowns, registration problems -- these all occur routinely during the election process. But voters only become aware of these problems when a race is close enough for the problem to affect the outcome. Given that most races are not competitive, that's a bit like tracking annual rainfall by counting how often lightening strikes. Because voters learn about election administration problems in a haphazard, episodic fashion, politicians have no incentive to pay attention to them unless there’s what Rick Hasen calls an "electoral meltdown."

The magic of Fung's idea is that it makes election problems visible even in the absence of an electoral meltdown. If enough people participated so that coverage is thorough and consistent -- and that's a big "if," as Fung recognizes -- the site would be a great way to draw people's attention to routine election problems. Indeed, I suspect that the site would be highly addictive. Like many others, I spent an inordinate amount of time reading the updates on election problems that Talking Points Memo and Ben Smith's Politico blog provided during the primaries. Those blogs, however, could provide only piecemeal information to their readers. By harnessing the power of the wiki, Fung's "myfairelection" site could provide coverage that is both more systemic (giving you a sense of the big picture) and yet more personalized (letting you see what's going on in your own neighborhood).

While myfairelection.com would not pass muster with any political scientist (because it depends on reporting rather than random sampling, the gold standard of social science research), it would surely attract the attention of politicians as well. Consider, for example, the success that election reformers have had with the Election Incident Reporting System (EIRS), a web-based system that has allowed voter protection groups and individuals to report problems they've encountered in the last few elections. Because the data are available at the state and county level, reformers can tell state legislators and local council members that problems exist in their neighborhoods. As Tip O'Neil understood, one of the best ways to attract the attention of a politician is to document a problem in his district. That’s presumably why fixmystreet.com has had such a high success rate as well. It makes a problem visible and shames politicians into fixing it.

While Fung's idea is intriguing, there are definitely some kinks to work out before the proposal is ready for prime time.

Fung has already thought hard about two obstacles -- getting people to participate and avoiding the problem of spamming. Here's another: figuring out how to ensure that the site doesn't generate or amplify false rumors. Think about what happened in Arizona during this primary season. Contrary to usual practice, the primaries were closed, which meant that only registered Democrats could vote in the Democratic primary and only registered Republicans could vote in the Republican primary. Unsurprisingly, a number of independent voters were (quite properly) turned away. Because people didn't understand why voters were being turned away, rumors began to fly that thousands of voters had been wrongly purged off the registration lists. Relying on average people to report problems means that you risk a lot of misreporting.

The costs to misreporting are quite serious. Election administrators already do a hard job with few resources. I'm all for using data to hold election administrators and politicians accountable for problems in the system -- I've spent the last year writing on the subject -- but you have to have reliable, comparative data to do so. Otherwise, you'll just end up savaging the reputations of people who deserve better.

The wiki solution to this problem might be to ensure that election administrators have access to the site and an opportunity to tamp down rumors. I'm not sure this would be enough, as people tend to be suspicious of election administrators' motives. That’s because people see a problem, learn that the election official in charge has a partisan affiliation (most do), and find it all too easy to connect the dots and assume the source of the problem is partisan shenanigans. My research over the last year has convinced me, however, that most election problems are caused by a lack of resources. I've thus proposed a gentle version of the rule called "Hanlon’s Razor," which says that we should never attribute to malice that which can be explained by incompetence. In the context of election administration, we should never attribute to partisanship that which can be explained by a lack of resources. But how do we communicate that idea to the people logged in to myfairelection.com?

Here again, a wiki solution might help address the problem. First, the site might widen the lens for voters by showing them that the problems they see in their own polling place are happening throughout the country. Imagine, for instance, someone entered a report indicating that lines were long at her polling place. Next to that report the site might put a running total of how many other polling places nationwide were experiencing the same problem. Second, the site might ask experts to blog simultaneously to provide some perspective on these issues, or it might link to extant research. For instance, anyone who reported that she wasn't properly registered to vote might be asked if she wants to see the latest Pew Foundation report on the registration process.


A non-wiki solution to the problem of misreporting would be to allow only trained election monitors to post. Fung is halfway there, as he envisions an army of trained monitors assisting with the site. But I'm quite skeptical even as to the viability of Fung’s more limited proposal. It would take a mammoth amount of resources and legwork to get trained monitors in every polling place in the country (and some legal work, as some states ban election monitors in polling places). Fung astutely suggests piggybacking on the existing infrastructure -- relying on the monitors that the campaigns and good governance groups put in place each election cycle. Even then, it will be very tough to get a monitor in every polling place.

Finally, we should all be cognizant of the limits of the site. Fung is right to suggest that one important benefit of his proposal is that it would give us real-time feedback on how well the election is going, something that would be useful to campaigns and election administrators alike. But Fung is also right not to overclaim about the dependability of this data for evaluating election performance over the long haul. Social scientists are skeptical of reporting systems like these with good reason. We’d need more dependable, systemic data (that covers not just balloting on election day, but the registration and counting processes) in order to evaluate how well our election system is performing. That kind of data can be had, as I explain at length in my book on building a Democracy Index, but it will take more than one website to get it.

Nonetheless, Fung's proposal is quite intriguing. If he can figure out how to reap its benefits while mitigating its costs, he'll have accomplished a good deal in helping us get from "here to there" in election reform. Myfairelection.com might seem like a modest reform, but it's a modest reform that could make bigger, better reform possible.

Resistance to Campaign-Finance Laws: Liberty? Or Effects?

Rick Pildes

The Volokh Conspiracy's Ilya Somin and I have been engaged in an illuminating exchange about campaign-finance regulation. Somin is generally opposed, on the ground that these kinds of laws, such as the McCain-Feingold Act, are too likely to be enacted for self-serving reasons, that is, to protect incumbents. I agree that this risk is real and that it's important for all to be aware of it -- including journalists, judges, and the rest of us -- but I would judge each individual law (or specific provision within a law) on its own terms. I would not dismiss campaign-finance regulation as generally and inherently incumbent protecting.

But I now want to shift grounds to a more fundamental issue. In recent years, I have noticed that those generally opposed to campaign-finance regulation have put much more weight on this argument about the effects of such laws. The argument that these laws are incumbent-protection devices has carried a much heavier share of the load in the resistance to these laws. Justice Scalia, for example, in his dissent in the McConnell case, in which the Supreme Court upheld the McCain-Feingold law, put most of his emphasis on precisely this argument. But I wonder how much these arguments about the effects of such laws are really makeweight arguments for those whose resistance is actually based on the view that these laws violate essential political liberties reflected in the First Amendment. I don't mean the arguments are not sincere; I mean that they are not the ultimate basis for opposition, though, to these laws.
There is an easy way to test this question: let us suppose it turns out that certain kinds of campaign-finance regulation -- perhaps contribution caps, perhaps spending limits -- do make it easier for challengers to compete effectively against incumbents. Would someone like Justice Scalia or Prof. Somin then support that regulation? I suspect not. And if not, that is because the resistance is not, ultimately, based on the effects of these laws, but on a certain view of free speech and liberty.

Of course, it could be the case that these laws both violate liberty and have the undesirable effect of entrenching incumbents. But once someone has a deeply held view about matters of fundamental value or principle (on either side of an issue like this) I suspect they are not likely to get that deeply involved in the actual empirical judgments about whether such laws do or do not entrench incumbents -- or they are likely to fit what they know of that evidence into their prior belief system. Thus, I suspect campaign finance is another area where, for many, debates over seeming empirical issues -- whether these laws entrench incumbents -- actually mask what are really debates over issues of principle instead.

Sunday, July 06, 2008

Overestimating the importance of the Supreme Court (and Justice Kennedy)

Sandy Levinson

David Broder's piece in today's Washington Post, entitled "Decider on the High Court," refers to "a quiet California lawyer [who has become] what may arguably be the single most influential arbiter of domestic policy in the land." He is referring, of course, to Justice Kennedy. There is certainly much to be said for the proposition that he has succeeded Sandra Day O'Connor as the "median justice" and is therefore the "decider on the high court," as in Boudimiene and Heller. But what is unacceptably hyperbolic is Broder's statement that this translates into a status as the "single most influential arbiter of domestic policy in the land." As Fred Schauer, building on the work of our own Mark Graber, demonstrated beyond reasonable doubt in the Harvard Law Review a couple of years ago, the handiwork of the Court is remarkably irrelevant to the "domestic policy" concerns of most Americans. Think today of energy, the housing crisis, the health care crisis, and immigration, and one discovers that the Court has astonishingly little relevant to say about any of these. The overestimation of the power of the Supreme Court, which usually includes Tocqueville's demonstrably wrong quotation from his 1835 book Democracy in America on all political issues turning into judicial issues, is one of the continuing scandals of American political analysis. Broder is, or at least was, a more acute analyst of American politics than many of his fellow reporter/pundits; it is a shame to see him say something so completely misleading. Why isn't it enough to say that the Supreme Court is an institution of some importance with regard to some issues and, therefore, that Kennedy plays a key role with regard to those particular issues (i.e., where the Court is otherwise evenly split on ideological grounds)?

Friday, July 04, 2008

Scholars and political partisanship

Sandy Levinson

Perhaps some readers of Balkinization will be interested in aspects of an exchange that I recently had with Judge Richard Posner, whom I know slightly and admire greatly, even though we disagree about many, many things. He was reacting to a statement of mine on a listserv for academics especially interested in law and courts, in which I was trying to explain to one of the other participants why I was pleased by the result in Heller. I had written the following:


Why do I support the outcome (if not necessarily Scalia's opinion): First, as a lawyer, I think it is quite plausible to interpret even the Second Amendment, let alone the Ninth Amendment and, even more clearly, the Privileges or Immunities Clause, to protect the individual right of self-defense that Scalia evokes. But, let me confess, my principal reason for endorsing the decision is political. I believe that the commitment of Democratic Party elites (though I recognize it is not exclusively elites) to basically symbolic measures of "gun control" has been a disaster for that Party. Morris Fiorina argued at the APSA that Bill Clinton's insistence on the "assault weapons" ban in 1994 contributed directly to the loss of 6 Democratic seats in the House (including, of course, Speaker Tom Foley's). I think it is a powerful explanatory force in explaining the phenomenon of Reagan Democrats among the white male working class. (emphasis Posner’s).


Judge Posner emailed as follows: “Sandy, is this proper? It sounds as if you advocated a judicial result for an undisclosed partisan political reason. Doesn't that undermine the credibility of legal academic commentary on pending cases? Maybe I'm missing something. I knew in a vague way that you supported gun rights, but I assumed it was for reasons unrelated to loyalty to a political party.”

I responded as follows:

If someone asks me for my “best reading” of the Second Amendment, or any other part of the Constitution, then I would try to offer it without taking crass political considerations (or what Jack Balkin and I have elsewhere called ‘low politics,” because I suspect you agree with us that it is impossible to separate constitutional analysis from “high politics,” i.e.,some belief as to what is best for the country, all things considered)into account…. Perhaps my mistake was using the term “endorsing the decision.” It would have been more accurate had I said “my principalreason for being enthusiastic about the decision,” in the specific sense of its outcome. As a lawyer, I dislike both the Scalia and Stevens pinions, quite independent of any political views I have, and I think I can explain that without becoming crassly political.


My Yale piece[, The Embarrassing Second Amendment,] didn’t touch on “political considerations,” though I published a piece in Randy Kennedy’s journal, "Democratic Politics and Gun Control," 1 RECONSTRUCTION, No. 4, pp. 137-141 (Spring 1992), setting out my belief that Democrats were behaving stupidly in over-investing in “gun control” legislation, especially given that most of it wasn’t likely to be effective.... (It’s interesting to speculate why the notably unprincipled Clinton stood so firmly in behalf of the assault weapons ban; if he thought it was good politics, then this is simply one more piece of evidence that perhaps we have overrated his political sagacity.)

In one of my other replies, I mentioned the Newdow decision in 2004, where I both a) thought that the Supreme Court fabricated a “preposterous” standing doctrine to avoid affirming the clearly correct Ninth Circuit decision invalidating “under God” in the Pledge of Allegiance; and b) was immensely relieved that the Court had avoided a decision that would have created a tremendous backlash that would undoubtedly have helped Republicans and hurt Democrats. Judge Posner then made the following point:: “So in Newdow, you think the standing ground for dismissing the suit was preposterous but would you say that, or would you as a Democrat commend Stevens for his opinion?”

This is a very challenging question. For me this evokes the debate many years ago between Gerald Gunther and Alexander Bickel about “passive virtues” and betrayal of “judicial principles.” One can ask the empirical question whether Supreme Court justices do take political considerations into account when deciding whether or not to grant cert. in the first place or, as in Naim v. Naim, to shamelessly (and shamefully) dodge a case because of a (well-merited?) belief that it would be politically counterproductive, with regard to the possibility of enforcing Brown, to invalidate Virginia’s anti-miscegenation law in 1956 (as against a decade or so later, when it was an easy, unanimous decision to do so). Moreover, judges in multi-member courts clearly take “political considerations” (though presumably not of a “partisan” sort”) in deciding whether or not to craft opinions in a way to gain additional votes or, instead, to risk the likelihood issue a full-throated concurring opinion or a potentially unnecessary dissent. )

But, obviously, there is nothing “public” about most exercise of such political actions. And, even more to the point, no federal (or other) judge has, to my knowledge, ever said publicly, “I support X (where X is either a legal principle or a decision of the Supreme Court) because it will be good for the Republican (or Democratic) Party.” Consider Bush v. Gore. I personally believe that Judge Posner has written the best defense of what I regard as an indefensible decision, and there is certainly a “politics” to his defense, based on the perception, justified or not, that the country was on the brink of instability and that the Court’s intervention, though legally dubious—Posner has been absolutely caustic about the Court’s per curiam opinion as a piece of “legal craft”—is legitimate because it brought us back from that brink. Nowhere, of course, does he suggest that what justifies Bush v. Gore is that it was good for the Republican Party, however much many of us believe that such a view motivated one or more of the majority of the Supreme Court in that case.

Posner distinguishes sharply between interventions in public debates and “partisanship,” where one is presumably assessing the position that one takes on the basis of its service to the interests of a political party. Indeed, he is famous for his many books offering interventions in controversial issues of public policy ranging from sex to national security, in addition to his aforementioned defense of Bush v. Gore. One of the things I admire in Posner is that he follows ideas wherever they take him, without fear or favor. I am confident that he has been indifferent to the likely reception of his views by people who might have been relevant to determining, for example, whether he would be “promoted” to the Supreme Court. Criticizing Robert Bork’s jurisprudence was certainly not a good “career move” for someone who really cared about such things. Whether or not one agrees with Posner on specifics, I think he has instantiated a commitment to intellectual integrity that I assume most of us would like to emulate.

Still, what constraints, if any, should academics feel with regard to publicly acknowledging their partisan commitments? Posner writes:

I don't think [academics should engage in the public support of candidates]. Remember Weber's great essay on politics as a vocation. The public morality of a politician is different from private morality; he has to lie, forge unprincipled compromises, etc. (Of course a degree of that is required in private life as well, but less.) But if the law professor supports the politician publicly, his principles become corrupted. I am led by the episode to think that law professors, at least those in fields that generate partisan disputes, should be like federal judges, and forswear any party identification or political activity. Otherwise their arguments will be thought in bad faith.


I’m inclined to disagree, but I also remember feeling very strongly, when I was a graduate student over 40 years ago, that Henry Kissinger was more truly loyal to the political ambitions of his then-patron Nelson Rockefeller than to telling his students exactly what he thought about the great issues of the day, including, of course, the Vietnam War. I never had such concerns about, say, Samuel Huntington on the right or Stanley Hoffman and other critics of the Vietnam War on the left. They said what they meant and meant what they said.

So this means that I am not certain what my own views are (or, more the point, should be). I end with these questions: Is it enough to engage in “full disclosure” by admitting to one’s partisan preferences up front? We require professors to indicate who has funded their research and certainly don’t disqualify them from membership in the academy because they receive funds from highly “interested” sources. (Exxon has notably funded some academic critiques of punitive damages.) If that’s all right, then why doesn’t it suffice for me to say that there is a happy conjunction between what I consider to be my “best” views about constitutional meaning and the interests of the political party with which I identify? Is it better to keep this a secret (since Posner surely would agree that many (most?) academics will have partisan preferences).

Is the Second Amendment a Rule or a Principle?

JB

In my previous discussion of the Second Amendment I've assumed that the right to bear arms is a principle: that is, a norm that does not determine the scope of its extension and that can be balanced against other considerations, like public safety. It seems to me to be similar in this respect to the First Amendment's "freedom of speech," or the Fourth Amendment's "right of the people to be secure in their persons, houses, papers, and effects, against unreasonable searches and seizures."

In a recent post, Larry Solum raises the intriguing possibility that the Second Amendment, unlike the First, does not state a principle (i.e.,the free speech principle) but a rule:

But the wording of the two clauses may be relevantly different. "Freedom of speech" does not specify content for a legal right: there is "freedom" and it concerns (is "of") speech. The Second Amendment is (arguably) different. The term is "right" and not freedom, and it is the "right to keep and bear arms" where the phrase "to keep and bear arms" seems to provide content for a legal rule--the rule identified by Justice Scalia in Heller. Of course, the rule is not fully specified--there is vagueness with respect to what counts as infringement, what the outer limits of the right are, what is an arm, what is keeping, what is bearing, etc. But unlike the freedom of speech, the Second Amendment may provide a legal rule rather than a principle in Balkin's sense.

If you wonder why anyone would care about this question (is it a rule or is it a principle?), it goes to how much room there is for regulating the right to keep and bear arms and to whether the text allows for exceptions.

I begin by noting that even if Larry is correct that the Second Amendment is a rule rather than a principle, it still does not get Scalia where he wants to go: he wants to show that the common law right of self-defense was constitutionalized in 1791.

Assume that there is a rule that we should not infringe "the right to keep and bear arms." But the original meaning of the text does not tell us which "right" we are talking about, even if we assume that right is exercised by keeping and bearing arms. There are at least three different "rights" that the text could refer to, as outlined in my previous post, a right to participate in organized militias, a right to participate in unorganized militias (to deter or overthrow tyrannical government), and a right to self-defense. We would have to look to enactment history to resolve the ambiguity in the word "right." Once again, as my previous post explained, the history is pretty clear that the framers and ratifiers were speaking about the first right, and probably also the second, but it is not at all clear that they were speaking about the third-- the common law right of self-defense. (The latter assumption-- that a common law right was being written into the Constitution is, as I've noted before, a product of the 19th century). So if Scalia is really committed to the original meaning of the text, he can't justify Heller on the basis of original meaning alone. He must engage in (permissible) constitutional construction.

In any case, I think there's a larger problem with calling the Second Amendment a rule rather than a principle. Larry's suggestion is that if we are presented with a rule (as opposed to a principle), each term in the rule must have a large core of fixed application surrounded by a narrower penumbra of potential vagueness. As Larry says "Once a rule has been interpreted and the facts have been found, then the application of the rule to the facts decides the issue to which it is relevant, except to the extent that vagueness is the rule requires the creation of some subsidiary legal norm to resolve the vagueness. In Hart's terms, `rules' have large cores and narrow penumbras."

Consider how this would work with the Second Amendment. Can we identify a core meaning and a penumbra for the terms "infringe," "and "arms" that explains the operation of the clause? Scalia suggests that banning machine guns (and other dangerous weapons) does not infringe the right to keep and bear arms. Most people would probably agree. If that is so, then it must be either because a total ban of a weapon is not an "infringement," or because machine guns are not "arms." But I would have thought that these are core examples of the words "infringe" and "arms," respectively. If we treat the Second Amendment as a rule, then it's hard to see how we can avoid this result, given the original meaning. (Remember the text says nothing about any distinction between especially dangerous and not especially dangerous arms. It just says "arms.").

If we stop thinking about the Second Amendment as a rule and start thinking about it as a principle, however, Scalia's conclusion isn't at all strange. Indeed, it makes perfect sense. If "the right to keep and bear arms" is a principle, it does not determine the scope of its own extension, and it can be balanced against other considerations, such as public safety.

Moreover, suppose that "the right to keep and bear arms" is a civic republican principle that involves not merely an individual right (in the modern liberal sense) but also common duties to defend the state through an organized or unorganized militia. In that case, arms that allow a single individual to inflict enormous damage do not further the purposes of the principle, because they do not encourage collective action.

(An aside: One of the weakest features of Scalia's opinion is that it largely disregards the civic republican origins of the right and treats it as a modern liberal individualist right. This is another example of Scalia's anachronistic use of history.)

Either way, treating the Second Amendment as a principle (not a rule) makes the most of sense of how we could (and should) enforce it today. And there is no evidence I have seen that it was intended to be a rule in Larry's sense. Indeed, as Scalia himself points out, the Second Amendment was declaratory of rights that Americans already believed they had. Declaratory statements about traditional rights are almost always statements of principle.

In general, when the Constitution refers to a "right" or a "freedom" or a "liberty," or a "privilege" or an "immunity," it is a good guess that it is usually enacting a principle, not a rule in Larry's sense of the word. In particular, I don't think that choice of the word "right" versus "freedom" signals choice of a rule rather than a principle. (Consider once again the example of the Fourth Amendment in this regard, or the rights of petition or assembly in the First Amendment, or the rights referred to in the Ninth Amendment. It's hard to argue that all of these state rules rather than principles simply because they use the term "right" rather than "freedom.").

Wednesday, July 02, 2008

Does the Constitution protect a substantive right to hunt?

Sandy Levinson

I am inspired by some of the responses to Jack Balkin's last post on Heller; I agree completely with Jack's argument, and I'm curious about the implications of some of the respondents' arguments.

Let's assume that it is legitimate to use a firearm to hunt, and let's even assume that that's what anyone in the late 18th century would (properly) have believed and, indeed, what many Americans have believed since then. But is there a right to hunt per se? Imagine, for example, that animal-rights supporters take power in some state and simply outlaw the hunting of any and all animals. (Any killing of predators will be taken care of by professional "animal control officers" who will uniquely have the right to use deadly force against them.) That would, obviously, also make it illegal to use your gun (or bow or arrow, etc.) to hunt an animal.

Would any reasonable person argue that the Constitution would prohibit a state (and perhaps Congress as well, operating under the same view of the Constitution that legitimizes the Endangered Species Act) from outlawing all hunting and thus making rifles, shotguns, etc., absolutely "useless" for their most common intended purpose? If one finds a "right to self-defense" (that includes the possession and even use of firearms) in the Second Amendment, does that entail, for anyone other for a fanatic, that "a right to hunt and kill animals" is also a protected Second Amendment right? Would the state really be estopped from stating that killing animals is no longer a "reasonable use" of firearms? Isn't this just one more argument in favor of the Ninth Amendment, which so easily allows us to differentiate between self-defense and killing animals, instead of shoehorning everything one likes into (and excising everything one dislikes, such as bringing firearms into federal courthouses from) the Second Amendment?

[UPDATE: I have corrected a typo in the last paragraph. But let me borrow from a point made by University of Pennsylvania Professor of Law Paul Robinson in an op-ed in yesterday's New York Times, "Shoot to Stun," that suggests that a number of non-lethal weapons are available, including tasers, that are far more effective as means of self-defense than handguns. So does the Second Amendment protect a right to handguns even if there is extremely good evidence that the purpose of self-defense can be achieved by modes less likely to kill people (or to be the source of accidental deaths when found by children, etc.)? If guns can effectively be prohibited as means of hunting, because of animal rights concerns, then why couldn't they be prohibited as means of self-defense if other weapons are easily available and do the job (of self-defense) far more effectively.

Incidentally, should the Supreme Court take judicial notice that people who kill others, even in self-defense, sometimes feel remorse (as Kennedy argued was the case with women who had abortions), so this would count as an additional reason to require the substitution of non-lethal means of self-defense over lethal ones?]


Is Heller an Original Meaning Decision?

JB

Many commentators, including my good friends Randy Barnett and Larry Solum, have praised Justice Scalia’s opinion in Heller v. District of Columbia as a sparkling example of original meaning originalism. After having read the opinion closely a number of times, I am not so sure.

I do not doubt that Scalia uses original meaning methodology at the beginning of the opinion. Rather, the crucial move that decides the case– and that separates the majority from the dissent– is not an argument from original meaning. Let me explain.

The first part of Scalia’s opinion does make a very straightforward inquiry into original meaning. It asks what the words of the Second Amendment meant at the time of enactment. The “meaning” it looks for is what Larry Solum calls “semantic content,” the concepts that the clause uses and the ways that they are put together to form sentence meaning.

So Scalia concludes, after some discussion, that the semantic content of “keep and bear arms” means roughly the same what it means today, something along the lines of “to possess and carry weapons in case of confrontation.” Actually, the extra words “in case of confrontation” are not necessary to the original meaning. They are an implication Scalia adds, in large part, I think, because he wants to prepare the reader for his argument about self-defense.

Scalia points out, and I think correctly, that the original meaning of the phrase “keep and bear arms” isn’t limited to military uses. It could refer to non-military uses, like hunting or self-defense. Such a construction of its scope is consistent with the original meaning of the clause. It is not a generally recognized term of art with a meaning that must be more limited.

So far, so good. The next step is to note that the Amendment states a principle, not a rule or a standard. The principle is that “the right to keep and bear arms shall not be infringed.” What exactly is this principle, and what is its proper scope? The principle in the Second amendment, like many principles in the Constitution, is vague. For example, the First Amendment says that “Congress shall make no law . . . abridging the freedom of speech.” The key word in this sentence is not “no” but “freedom.” Whatever the freedom of speech is, Congress may make no law abridging it. But what precisely is the freedom of speech? Does it include all acts of speaking? Is reasonable regulation of speech an abridgement of the freedom or is it merely a ban on license or abuse.” Moreover, as Justice Scalia himself has pointed out, the word “speech” in the First Amendment seems to be a synecdoche, that is it is a part that stands for a larger class of related things, like writing, printing, painting, sculpture, music, telecommunications, and so on. So even once we know the original meaning, we must fill in vague principles with constitutional constructions.

Back to the Second Amendment. We know there is a principle: don’t abridge the right of the people to keep and bear arms. But we don’t know what the content of that principle (or set of principles) is; and the original meaning of the sentence, the clause meaning, does not tell us. It could point to any number of different principles.

Here’s where the opinion gets tricky. What most people would do, and what both Scalia and Stevens do, is to look back into history to see what principles the framers and ratifiers sought to put into effect through their choice of words. That is, they are looking for the “original principle” or “original purpose” of the clause, and it’s important to understand that this inquiry involves a different aspect of “meaning” than asking about the original semantic content of the clause. The argument is that if a principle was an original purpose, then we should interpret it according to that purpose today.

It turns out that there is an original principle that everyone agrees the framers and ratifiers had: it was to prevent the federal government from disarming citizen militias organized by the states. This would deter federal tyranny, insurrection, and foreign invasion. Call this the principle of preservation of state militias. There is a second principle that almost everyone agrees was an original purpose: to prevent the federal government from disarming citizen militias that were not organized by states, but that might arise spontaneously to fight a tyrannical federal government, tyrannical state government, anti-republican insurrection, or foreign invasion. Call this the principle of republican insurrection. Both of these principles are civic republican ideas: they assume that citizens formed militias as a public duty they owed to each other and to the republic. Citizens would band together, either organized by states, or spontaneously, to protect each other and the republic from invaders or tyrants. It was not a purely individualist or liberal right to be free from state interference as we imagine rights today. Rather, it was a right that arose from a common duty of political obligation.

The history strongly supports that among the original purposes of the text was constitutionalizing these two principles: the principle of preservation of state militias and the principle of republican insurrection. We can see this from the preamble to the Amendment, which speaks of militias, from the history of the English Bill of Rights, in which Protestants wanted the right to defend themselves against the Stuart Kings (this is an example of the insurrectionist theory), and also from the drafting history of the Second Amendment, which demonstrates civic republican ideas about the obligation to serve in the militia (that is why there was discussion of an exemption for religious dissenters). Justice Scalia rejects the drafting history as evidence of original meaning, but it is quite relevant to discovering original purpose, and that is what both he and Justice Stevens are interested in at this point in the discussion.

There is also a third principle that the text might have been created to protect: It might have been designed to constitutionalize the common law right of self-defense using generally available weapons. And now comes the key issue in the case.

The problem is that the historical evidence that the framers and ratifiers sought to constitutionalize this common law right is mixed. It is far less strong than the evidence for the first two purposes. There is evidence that goes both ways in the history, and some pieces of evidence can point both ways depending on how you read them and the context in which you consider them. You can see some of this evidence by comparing the historical versions offered by the majority and the dissent, each of which articulates the history in ways most favorable to itself and each of which pretends that there is no other possible conclusion to draw from the history. That by itself should lead you to be dubious of the confident claims that both sides make.

Nevertheless, we can say one thing: The original meaning of the text is consistent with all three purposes, including the right of self-defense. So if we wanted to construe the Second Amendment to constitutionalize the common law right of self defense, we could. There is nothing in the original meaning of the text that stops us. That is true even though the preamble speaks of militias, because, as Scalia correctly points out, this does not necessarily limit the scope of the clause. It might be one reason not to read the clause to constitutionalize the common law right of self defense, but it is not a conclusive reason.

However, as one moves into the 19th century, people’s attitudes change. More and more people think that the common law right of keeping and bearing arms in self defense is a fundamental constitutional right. Some of them think it is part of the Second Amendment, others don’t identify it with any particular part of the Constitution but regard it as a basic right of citizenship. Either way, by late 1840s there is evidence that lots of people think that this is a basic right. In particular, the framers of the Fourteenth Amendment think it is a privilege or immunity of citizenship, and there is strong evidence that they believe that this right is one of the privileges or immunities of citizens of the United States that the States must protect under the Fourteenth Amendment.

So even if the evidence is unclear that self-defense was an original purpose in 1791, the evidence is strong that it was a purpose of the framers of the Fourteenth Amendment when they wrote the Privileges or Immunities Clause, which was designed to incorporate the individual or personal rights in the Bill of Rights, including the individual rights protected by the Second Amendment. And because people believed this in 1868, that is a reason to think that this interpretation is a permissible construction of the Second Amendment as it applies to the federal government. Once again, the text can bear it, despite the preamble.

And here is the point: The argument that the Second Amendment constitutionalized the right of self-defense does not follow directly from the Amendment’s original meaning, as Scalia claims it does. Just because a reading is consistent with original meaning, that does not mean that it is required by original meaning.

Rather, it is a permissible construction or gloss on the Amendment. It is a gloss that develops over time, and becomes generally and widely accepted by Reconstruction, and continues throughout the 19th century, as Scalia’s opinion suggests. However, because Scalia wants to insist that this was always an original purpose of the Amendment, he reads this 19th century history as proof of the original purposes of 1791. This is anachronistic. And, as noted above, he confuses original meaning – i.e., the content of the words used – with original purpose and original expectations.

Scalia seems to believe (incorrectly) that the purposes attributed to a clause at the time of the founding are a part of its original meaning. Having made that mistake, he also seems to believe that if a purpose attributed to an amendment is not among its original purposes, it cannot be a legitimate purpose because it is not part of the original meaning. This means that the 19th century evidence is only relevant to him if it proves what people believed to be the purposes of the Amendment in 1791. If, it turns out that a particular purpose (self-defense) developed over time as a result of gradual evolution of American values, it is not an original purpose. Hence it is illegitimate to attribute it to the text.

I disagree with this entire line of reasoning. The question of original meaning is different from the question of original purpose and original expectations. Original meaning originalism says that we are bound by the first kind of meaning: what concepts did the words point to (or what was the semantic content of the words) at the time the text was adopted? Where the original meaning is vague, we must engage in constructions to flesh out the text and apply it to present day problems.

It would have been far more honest to say the following: Does the Second Amendment constitutionalize the right of self-defense? The original meaning can bear this construction. The evidence that this was an original purpose is mixed, although there is some evidence. But this purpose– constitutionalizing the common law right of self-defense– became an important purpose, perhaps the most important purpose attributed to the Amendment throughout the 19th century, as the country gradually moved away from civic republican ideals and toward what we would now call classical liberal notions. This gloss on the text is a permissible construction, and it is a construction that has deep roots in our history and traditions. Therefore we should accept it as one of the purposes of the Second Amendment. So Scalia’s basic conclusion is correct.

But note that this is not an argument derived wholly from original meaning. Rather, it is an argument from what I would call text and principle. It starts with the original meaning and then, noting that the text points to a principle, it asks what the principle is. It then inquires into the larger purposes behind a vague text, and the purposes don’t have to be the originally intended purposes. Other purposes can count, as long as they are consistent with original meaning. In this case, the Privileges or Immunities Clause was believed to protect the right of self-defense against the states. This is an especially powerful reason for holding that the Second Amendment, which binds the federal government, also protects this right. (Thus the strong evidence for incorporation of a self-defense right against the states gives us good reasons to adopt this permissible construction of the Second Amendment with respect to the federal government).

Scalia’s basic result, I repeat, seems to me to be correct. But the key move in his opinion is not a deduction from original meaning. It is permissible reading, but Scalia does not want to recognize that it involves a choice on his part. He reads history anachronistically and he confuses original meaning with original purpose and original expectations in order to avoid presenting what he is doing as a choice.

Heller is a permissible construction of a vague text, consistent with original meaning but not compelled by it. The right of self-defense became associated with the Second Amendment over the course of history, as generations of Americans asked what the Constitution and the Bill of Rights meant to them in their own time. The argument for the constitutional right of self-defense is, in other words, an argument from living constitutionalism. Justice Scalia is well known to despise the idea of living constitutionalism. But what he has given us in Heller is actually a living constitutionalist argument disguised as law office history.

Made in China: What We Have Become

Marty Lederman

The SERE techniques that we used on prisoners at Guantanamo, as a matter of official state policy, approved at the highest levels of the Justice and Defense Departments, came directly from a document that described the techniques that the Communist Chinese used during the Korean War to obtain confessions, many of them false, from American Air Force POWs.

The intended and actual effects of these techniques?:
"Makes Victim Dependent on Interrogator"

"Weakens Mental and Physical Ability to Resist"

"Reduces Prisoner to ‘Animal Level’ Concerns."
Of course, the chart in question was not copied verbatim at Guantanamo -- the DOD folks had the foresight to make one (and only one) change: They omitted the original title, which was "Communist Coercive Methods for Eliciting Individual Compliance."

Nor is this merely ancient history (i.e., from 2002-2003). Recall that the President of the United States has formally authorized the CIA to continue using some (unknown) subset of these techniques, based on a finding that, although they might "reduce the prisoner to animal level concerns," they are not "cruel treatment" prohibited by Common Article 3 of the Geneva Conventions.

[UPDATE: As Max Hailperin notes in the Comments, the Biderman article in question emphasizes that the techniques in question had been used for centuries by interrogators around the world. "In fact, the truly most interesting point from Biderman's article may be a easily-overlooked modifier in his remark that the techniques were not original to the Chinese. He writes 'The methods of gaining compliance they used included nothing which was not common practice to police and intelligence interrogators of other times and nations, where restraints precluding such tactics were not in force.' I think those concluding words, 'where restraints precluding such tactics were not in force,' are the ones we ought to focus on. Implicit in Biderman's use of those words is an assumption that relatively humane, civilized nations would in fact put such restraints in place." That's what the Geneva Conventions did. Until February 2002.]

[UPDATE: Another commenter notes this telling passage from the Biderman article:
[O]ne form of torture was experienced by a considerable number of Air Force prisoners of war during efforts to coerce false confessions from them. The prisoners were required to stand, or sit, at attention for exceedingly long periods of tinme-in one extreme case, day and night for a week at a time with only brief respites. In a few cases, the standing was aggravated by extreme cold. This form of torture had several distinct advantages for extorting confessions.

....

Where the individual is told to stand at attention for long periods, an intervening factor is introduced. The immediate source of pain is not the interrogator but the victim himself. The contest becomes, in a way, one of the individual against himself. The motivational strength of the individual is likely to exhaust itself in this internal encounter. Bringing the subject to act "against himself" in this manner has additional advantages for the interrogator. It leads the prisoner to exaggerate the power of the interrogator.

...

For the interrogator, forced standing has still further advanitages. It is consistent with formal adherence to mythical principles of legality and humaneness important to the Communists. These principles are important in the interrogation-particularly in facilitating the adoption of a positive attitude by the prisoner toward the interrogator and the forces he represents. Adherence to these mythical principles also protects the interrogator from potential punishment at some future time for mistreating prisoners. The Communists, furthermore, can gain a considerablc propaganda advantage when victims who are released truthfully state that no one ever laid a hand on them.

For Thurgood Marshall's Centennial

Mary L. Dudziak

One hundred years ago today, Thurgood Marshall was born. In our own vastly different legal environment, it is hard to imagine what a milestone it was when Marshall became the nation’s first African American Supreme Court Justice in 1967, when he first argued before the Court as the first African American Solicitor General in 1965, when the man known as "Mr. Civil Rights" was confirmed by the Senate for a seat on the Second Circuit Court of Appeals after a year-long confirmation stalemate in 1962, or when his most important case as a civil rights lawyer, Brown v. Board of Education, was decided by the Court in 1954.

Thank you to Jack Balkin for posting my new book about Marshall on Balkinization and for inviting me to blog here. Exporting American Dreams: Thurgood Marshall’s African Journey focuses on one part of this man’s life, but one of my objectives in writing it was to reintroduce Marshall to a public that remembers him only as an aging Supreme Court dissenter. The book sets Marshall’s work in Africa in the context of his American civil rights work in the 1960s and takes the reader along with Marshall not only to constitutional negotiations leading to independence for Kenya, but also to a civil rights strategy meeting in Atlanta, and to the Louisiana sit-ins in 1960 leading to one of the cases that captured Marshall’s attention in his last months at the NAACP Legal Defense Fund.

The narrative strategy of the book is unusual. Each chapter is transnational. The focus shifts from the American civil rights context to Marshall’s work in Kenya (about which I’ve posted here and here, and will say more later). And it turns at times to the Kenyans Marshall worked most closely with, including Tom Mboya, a dynamic young Kenyan leader once seen as the West’s best hope for Africa, but assassinated in 1969.

By crossing borders, the book is part of historians’ efforts to examine American history on a global terrain. It engages an issue explored in recent works by James Campbell, Kevin Gaines and Saidiya Hartman: the way race and national identity are configured in African/American encounters. As a transnational legal biography, the book integrates foreign and domestic narratives, treating an international sojourn not as a vacation from Marshall’s "real life," but as another arena in which his ideas about law and social change were both framed and ultimately challenged. His belief that legal change was an essential element of equal citizenship seemed old-fashioned to younger American 1960s activists, but it was borne out of his life experience and was reinforced by his engagement in legal negotiations aimed at liberating Africans.

Thurgood Marshall has long been a staple in American history books, though sometimes only in passing reference to his American milestones. For his centennial, we should remember as well that his work – at home and abroad – made a mark on the world.

Tuesday, July 01, 2008

Roe's Survival and Bush I's Souter pick

Anonymous

Jack, the one thing you are missing I think, is the relative importance of abortion to the different Presidents, personally and for votes and the importance of Roe to a majority of the American people. This is implicit in David's posts.

I do believe that Reagan and Bush II, the two Republican Presidents who were/are evangelical about overturning Roe tried/are trying hard to do so. Scalia, Kennedy and O’Connor were meant to do this, Roberts and Alito are as well. History (i.e., Blackmun's notes lovingly reviewed by Linda Greenhouse) tells us that the Court would have done it if Kennedy hadn’t flipped during Casey. Bush I, on the other hand, simply wasn’t evangelical about the issue. Under pressure from Babs he had supported Roe in the past like other good waspy Republicans from New England, and flipped during the elections only to keep the Reagan base.

It’s true we were lucky (dumb or otherwise) with Souter, though his vote wouldn’t have mattered if Kennedy and O’Connor had voted to overturn Roe as intended. But history also reveals (in the form of statements by Warren Rudman and i'm sure other things) that Bush I didn’t care enough about abortion to insure the abortion paper trail was there with Souter. He wanted a confirmable conservative, someone who would avoid confirmation battles, and Warren Rudman (R. Sen. N.H.) sold Souter as both.


Bush I also thought he was a popular enough President, the moderates strong enough, that he didn’t have to choose a diehard anti. Remember Souter was nominated on July 25, 1990 on the eve of the Gulf War, which started in August. A year later, as 1992 and elections approached, Thomas was payback to the base.

So it’s clear there is some (dumb) luck or perhaps we could call it -- to romanticize -- judicial integrity, and perhaps true conservatism winning out over evangelical faith (Kennedy, O’Connor and in the old days Souter). Remember when conservatives still followed stare decisis and some judges were open-minded and willing to learn. Some still are, see, e.g., my favorite judge, Judge Kopf, Republican Bush I appointee for U.S. Attorney, now Chief Judge of the Distrist of Nebraska, whose chances of 8th circuit nomination we abortion lawyers undoubtedly ruined.

Couple this with a lack of resolve (or disinterest) by Bush I, and the power, though waning, of more moderate Republicans like Warren Rudman (Souter); and here we are. It has taken this long because the voters are split and that was reflected in Presidents. Now the religious right overreached and Bush II overreached with them. Bush II is so unpopular partly because of his stance on social issues, including abortion and we can only hope that the moderates translate that to McCain or we are done for.

Best New Blawg

Marty Lederman

Without much fanfare, Bernie Meyler has entered the blogosphere. With characteristically wise and provocative thoughts, not only about Heller and Boumediene and the recent Carl Schmitt craze, but also Macbeth and Faith Akin.

Well worth your bookmark.

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